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WOMEN’S OFFENDING BEHAVIOUR IN

NORTHERN IRELAND:

A STRATEGY TO MANAGE WOMEN OFFENDERS AND

THOSE VULNERABLE TO OFFENDING BEHAVIOUR

2010-2013

OCTOBER 2010



WOMEN’S OFFENDING BEHAVIOUR IN

NORTHERN IRELAND: A STRATEGY TO

MANAGE WOMEN OFFENDERS AND THOSE

VULNERABLE TO OFFENDING BEHAVIOUR

2010-2013

OCTOBER 2010



MINISTERIAL FOREWORD

I am pleased to publish this Strategy to Manage Women Offenders and Those

Vulnerable to Offending Behaviour. This initiative further underlines myDepartment’s and the Executive’s commitment to addressing offender

management, as reflected in the Hillsborough Agreement of February 2010.

Many years of experience in the field of social work have shown me that, for

many, the pathway into crime is characterised by a plethora of social

misfortunes, often typified by lifestyles marred by mental health problems,

addiction, dysfunctional relationships, and family breakdowns. I am resolute

in my belief that securing a reduction in offending and re-offending demands

the provision of effective support and interventions for those people already

caught up in the Criminal Justice System, as well as for those, often

vulnerable people, who are at risk of becoming so.

Only a small proportion of offenders are women. However, the underlying

causes of their offending behaviour and their subsequent experiences of the

criminal justice system can have a huge impact on their children and families.

The problems encountered by women are often complex, and differ in type

and severity from those experienced by men. As well as mental health

problems and addiction, issues such as poverty, homelessness, abuse, and

domestic violence have been shown to be prime motivators for a woman’s

involvement in crime. To meet the specific needs of women offenders, the

criminal justice system must provide a different response to that targeted at

men.

A public consultation on a draft of this strategy was carried out in 2009. The

views expressed in response to that consultation have helped to shape the

final strategy and the structured, co-ordinated, multi-agency approach which it

articulates. The strategy builds on initiatives already in train and outlines how

interventions designed specifically for women will be developed in the coming

years.



The strategy is an important component of a wider vision of reducing

offending in Northern Ireland. To achieve this requires actions, both by the

criminal justice system managing and redirecting offenders, and by wider

government, tackling some of the underlying factors I have already described.

It is only by taking a coordinated and joined-up approach, both within the

justice system and beyond, that we will deliver a significant reduction in the

number of women offending and re-offending in Northern Ireland. Much is

already being achieved by the criminal justice agencies, working together with

other statutory agencies, and the community and voluntary sector, with the

common goal of addressing the particular vulnerabilities which women

offenders present.

For those women who do offend, and for whom a custodial sentence is

appropriate, I am committed to ensuring that they receive the interventions

and support they need in custody to help reduce their risk of re-offending. My

21 June statement to the Northern Ireland Assembly announced the

commissioning of a review of the conditions of detention, management and

oversight of prisons. That review is looking at issues at Hydebank Wood,

relating to the development of this strategy, including the scope for a discrete

facility for women.

This strategy is a key strategic development which will contribute directly to

my wider vision of reducing offending in Northern Ireland. I am pleased with

the progress and achievements already realised. However, more needs to be

done to deliver services and interventions to women in a holistic and co-

ordinated way. I know I can rely on the continued cooperation and support of

all those involved; a factor that is even more relevant in the current

challenging financial circumstances which face all public services.

DAVID FORD MLAMINISTER OF JUSTICE



INDEX

Page

Chapter 1 Introduction 5

Chapter 2 Women Offenders- Context and 7Background

Chapter 3 A Co-ordinated Approach in 16Northern Ireland

Chapter 4 Strategic Strand 1: 18Providing Alternatives to Prosecution

and Custody

Chapter 5 Strategic Strand 2: 23Reducing Offending

Chapter 6 Strategic Strand 3: 47INSPIRE Women’s Project:Gender-specific CommunitySupervision and Interventions

Chapter 7 Strategic Strand 4: 55Developing a Gender-specific Approach tothe Management of Women in Custody

Chapter 8 Equality and Human Rights Issues 60

Chapter 9 Summary of Achievements to date 63

Annex 1 List of Completed Action Points, 65as highlighted in draft strategy

Annex 2 Disposals in all courts by gender 68and offence classification 2006

Annex 3 Action Plan 69

Annex 4 References 77

Annex 5 Glossary of Abbreviations 79



5

CHAPTER 1

INTRODUCTION

1.1 Women make up only a small proportion of those who offend or who

exhibit offending behaviour in Northern Ireland. However, their experiences of

the criminal justice process, and the interventions and services available, can

have a disproportionate impact, particularly on children and families. The

problems underlying women’s offending are often complex. Issues such as

poverty, homelessness, mental illness, abuse, domestic violence, and

addictions are often the prime motivators underlying a woman’s involvement

in crime. To reduce offending, ways to address the factors contributing towomen’s offending need to be developed, within the community where

possible.

1.2 To progress thinking in this area, a “Draft Strategy for the Management

of Women Offenders in Northern Ireland” was published by the Northern

Ireland Office (NIO)1 in February 2009. The document set out a proposed

strategy for meeting the complex needs of women offenders. It signalled the

government’s commitment to the development of a structured, co-ordinated,

multi-agency approach to developing women-specific interventions designed

to address their offending behaviour.

1.3 The draft strategy was developed following pre-consultation with

women offenders and those who work with them, and a four-day consultation

event with key stakeholders in April 2008. A public consultation on the draft

strategy took place between February and June 2009 and associated

workshop events were held in the community and with staff and inmates in

Ash House, the women’s prison at Hydebank Wood. Responses to the draft

strategy were received from a wide range of organisations and individuals,

and a summary of those responses was published in November 2009.

1Now the Department of Justice



6

1.4 Building on the draft strategy, and taking into account the responses

from the consultation, this ‘Strategy to Manage Women Offenders and Those

Vulnerable to Offending Behaviour’ sets out an ambitious cross-cutting

programme of work. It seeks to build on existing partnership working between

criminal justice agencies and other statutory, community and voluntary sector

agencies, to deliver services and interventions to women in a holistic and

coordinated way.

1.5 Responding to the vulnerabilities and often complex needs of women

offenders poses considerable challenges to service providers. Delivering a

cohesive approach and marshalling available resources in a more effective

way will assist vulnerable women to take responsibility for their own lives;

reduce the cycle of offending and re-offending; and contribute to reducing

crime and making the community safer.

1.6 This strategy sets out four strategic strands: Providing Alternatives to

Prosecution and Custody; Reducing Offending; INSPIRE Women’s Project -

Gender Specific Community Supervision and Interventions; and Developing a

Gender-Specific approach to the Management of Women in Custody. The

Department of Justice (DoJ), in collaboration with the Probation Board for

Northern Ireland (PBNI) and the Northern Ireland Prison Service (NIPS), will

use this strategy to ensure the effective management of women offenders in

Northern Ireland, both in the community and in custody.

1.7 While this strategy has been in preparation, work has been

progressing, and in some cases has been completed, on a number of the key

initiatives set out in the draft strategy. These developments, which were

broadly supported by consultees, are referred to in Chapter 9 and set out in

Annex 1.



7

CHAPTER 2

WOMEN OFFENDERS- CONTEXT AND BACKGROUND

The Corston Report

2.1 In 2006, the United Kingdom Government commissioned Baroness

Jean Corston to carry out a review of women with particular vulnerabilities in

the criminal justice system in England and Wales. This followed extensive

previous research, much of which showed that women offenders present

particular problems.

2.2 Baroness Corston was asked to examine women’s experience of the

criminal justice process and the interventions and services available at each

stage of that process. Her task was to identify what more could be done to

tackle problems at an earlier point and, where possible, avoid vulnerable

women ending up in prison. Her report, published in March 2007, contained

43 recommendations aimed at improving the approaches, services and

interventions for women offenders and those at risk of offending.

2.3 Nearly all of Baroness Corston’s recommendations were accepted by

the Government, and considerable progress has been made in delivering on

them through a co-ordinated cross-government approach. While her report’s

analysis and recommendations relate to England and Wales, there is much in

it that resonates with experiences in Northern Ireland.

2.4 In the course of her review, Baroness Corston identified some of the

problems that, in different combinations, often trigger a crisis point in women’s

lives that in turn leads to offending. These include:

• domestic circumstances and problems such as domestic

violence and childcare issues;

“Women and men are different. Equal treatment of men and women

does not result in equal outcomes.” – Baroness Jean Corston



9

Issues facing women offenders

2.6 Overall, women offenders experience a broad range of vulnerabilities

relating to family relationships, children, health and mental well-being, and

addictions. Many have led very chaotic lifestyles and some have spent longperiods of their childhood in care, achieving only very low educational

attainments and gaining little, if any, experience of employment.

2.7 They also often have additional concerns about their financial situation

and accommodation needs. Poverty and a lack of choices can lead to women

feeling that they have little control over their own lives. Such issues can be

particularly devastating when a woman is also a mother.

2.8 Many women offenders also have a history of serious and sustained

sexual or other violent abuse, including domestic violence. Statistics from Her

Majesty’s Inspectorate of Prisons (HMIP), Her Majesty’s Prison Service

(HMPS) and the National Offender Management Service (NOMS) in 2008/09

show that up to 50% of women in prison in England and Wales reported

having experienced violence at home.

2.9 The 2008/09 Her Majesty’s Chief Inspector of Prisons for England and

Wales (HMCIP) Annual Report indicates that, as in previous years, there

continued to be significant levels of self-harm amongst women prisoners, with

47% of recorded self-harm incidents involving women. This has to be seen in

the context of women representing only 5% of the overall prison population at

that time.

2.10 A wide range of issues can underlie women’s self-harming, including

substance misuse, depression, personality disorder, anxiety in relation to

children and families, bereavement, relationship problems, bullying and

worries about losing accommodation.



10

2.11 In Northern Ireland, 18% of the women committed to Ash House (the

women’s prison at Hydebank Wood), in the first 6 months of 2010 were

subject to the NIPS procedures for supporting those who have self-harmed, or

who are at risk of, self harm. That compares to 9% of the male offenders

committed to Maghaberry Prison during the same period.

2.12 Baroness Corston’s findings regarding factors underlying women’s

offending mirror the experiences of women offenders in Northern Ireland,

although the relative importance of some of them may differ. Baroness

Corston and others have shown that women experience issues in a very

particular way, and that addressing the often complex needs of women

offenders requires a targeted and tailored approach.

Women offenders in Northern Ireland

Background

2.13 The number of women offenders in Northern Ireland is relatively small

compared to the number of men who offend. Women offenders attending

court mainly receive non-custodial disposals such as, Suspended Custody, a

Custody Probation Order, a Probation Order, Community Service, a

Combination Order, a Fine, a Conditional Discharge or Youth Conference.

For those women who receive custodial disposals, Ash House at Hydebank

Wood accommodates fine defaulters, remand prisoners and women offenders

sentenced by the courts to immediate custody for criminal offences.

2.14 Effective offender management is characterised by a rounded

approach where interventions are matched to meet identified re-offending

risks and needs. It is essential that women offenders receive the right

disposal. An important part of this is ensuring that the courts have access to

Pre-Sentence Reports on women offenders coming before them and that

assessments for women offenders include information on their specific needs

and provision.



11

Court disposals in 2006, by gender and offence type

2.15 The table in Annex 22 shows the disposals in all courts by gender and

offence classification in 2006 (the latest statistics available). In 2006, 3428

women passed through the courts (13% of the total figure) compared to22,935 men. Women were most likely to receive a “Fine” (66%), “Supervision

in the Community” (9%) or a “Conditional Discharge” (9%). Men, however,

were most likely to receive a “Fine” (66%), “Immediate Custody” (9%) or

“Suspended Custody” (9%).

2.16 In 2006, the most common crime category for women coming through

the courts was “Theft” (373). These women were most likely to receive a“Fine” disposal (26%), with the second most common disposal being

“Supervision in the Community” (23%). Theft was the second highest crime

category for men (1355) and these men were also most likely to receive a

“Fine” (31%) or “Supervision in the Community” (20%).

2.17 The second highest crime category for women in 2006 was “Violence

against the person” (296 offences). Women committing such an offence were

most likely to receive a “Fine” (33%); with the second most common disposal

being “Supervision in the Community” (21%). “Violence against the person”

was the highest crime category in 2006 for men (2000) with the most common

disposal being a “Fine” (36%) and the second highest disposal being

“Immediate Custody” (20%).

Community Disposals

2.18 With most women offenders coming before the courts in 2006 receiving

a community disposal, 9% of these were sentenced to community disposals

under the supervision of the Probation Board (PBNI). Such community

disposals include: Custody Probation Orders; Probation Orders with or

without requirements; Community Service Orders; and Combination Orders.

2Source: Court Prosecutions and Sentencing 2006. NISRA Research and Statistical Bulletin

11/2008



12

The new Public Protection Sentences also require offenders, sentenced to 12

months or more for offences committed after 15 May 2008, to be supervised

on release from prison as a condition of their licence.

2.19 Around 3,000 new orders are made annually by the courts requiring

PBNI supervision, with only a small proportion of these orders relating to

women offenders. During 2009/10, the courts made 3,290 orders subject to

PBNI supervision - 12% of which (392 orders) related to women.

2.20 Of the new orders relating to women offenders in 2009/10, 47% were

assessed by PBNI as being of low likelihood to re-offend; 38% were assessed

as being of medium likelihood to re-offend; the remainder (15%) had a high

likelihood of re-offending.

2.21 The INSPIRE Women’s Project 3 opened on October 2008 with a

caseload averaging 150 women offenders; mainly comprising those women

in its catchment are who are subject to statutory supervision orders or whose

court cases have been adjourned for Pre-Sentence Reports. The INSPIRE

Women’s Project also provides a day release placement for those women

prisoners on resettlement leave.

Custodial Disposals4

Women Offenders

2.22 Historically, the number of prison receptions5 for women in Northern

Ireland represents a relatively small proportion of the overall figure. In 2009,women accounted for 4% (251) of all receptions into prison while 5641 men

were received into prison during the same period. The number of prison

receptions for women (as a percentage of the total) has fallen since 2006,

when women accounted for 6.6% of all receptions.

3Further information on the INSPIRE Women’s Project is included in Chapter 6

4Source: The Northern Ireland Prison Population in 2009. NISRA Research and Statistical

Bulletin 02/2010.5Annual prison receptions are calculated simply as the sum total of admissions into prison

during the year.



13

2.23 The average overall prison population6 in 2009 was 1465, with women

representing 3% (48) of the total. This proportion of women offenders in

custody has remained fairly stable over the last decade. The average number

of women in prison in Northern Ireland in 2010 is, proportionately, relatively

small compared to the rest of the United Kingdom, the Republic of Ireland and

most of Western Europe7:

Prisoner Type

2.24 In 2009, 23% (1293) of all receptions for men were received under a

sentence of immediate custody compared to 13% (32) of all receptions for

women. On average, 48% of women in prison had been sentenced toimmediate custody, compared to 64% of men.

2.25 Remand prisoners accounted for 61% of all receptions for women,

compared to 52% of all receptions for men. On average, 48% of women in

prison were on remand (8.7% of these were under 21 years of age) compared

with 34% of men (17% of these were under 21 years of age). In 2009, 51

women were committed to custody for fine default. This represents 20% of all

prison receptions for women and compares to 24% of all prison receptions for

men.

2.26 The drop in the number of women committed to custody for fine default

is a positive step forward; historically, most fine defaulters who end up in

custody have defaulted on low level fines imposed for relatively minor

offences. A reminder scheme, whereby courts advise those men and women

approaching a default period, has been an important initiative. The scheme

has had the positive effect of reducing the number of default warrants being

issued by around 30%.

6The prison population fluctuates throughout the year and within each week. To remove

within-week variation and provide a more consistent approach, prison population statistics arebased on counts taken on the last Thursday night of each month. The annual average prisonpopulation is derived from twelve such monthly counts.7

Kings College London, World Prison Brief. 2010.



14

2.27 Although there were 51 women committed to custody for fine default,

the average number of women in prison in 2009 for fine default was 1. Fine

defaulters usually represent a very small proportion of the overall average

annual prison population due to the short duration of their time in prison. For

example, the average time served by a fine defaulter in 2009, covering both

men and women, was 4 days.

Immediate custody prisoners

Principal offence

2.28 Of the 32 receptions for women received under a sentence of

immediate custody in 2009, the most common offences were for “Violence

against the Person” (25%), “Breach of Suspended Sentence” (21.8%), “Fraud

and Forgery” (15.6%) and “Possession of False Identity Documents” (12.5%).

2.29 “Theft” represented a small percentage of receptions for women

received under a sentence of immediate custody in 2009; in previous years

“Theft” had represented a higher proportion of receptions. Figures from the

Home Office show that men and women originally convicted for theft re-offend

most quickly after their release.

Length of sentence

2.30 In 2009, of those sentenced to immediate custody, 60% of women

received a sentence that did not exceed 1 year and 25% of all receptions for

women received a sentence equal to or less than 3 months.

2.31 Such short sentences for minor offences may not help to reduce re-

offending amongst women as they are unlikely to have had enough time to

address their offending behaviour, given that many women offenders need to

overcome a number of complex issues.

2.32 Moreover, even a short sentence can have an enormous impact on a

woman, particularly if they are mothers; again supporting the need to divert



16

CHAPTER 3

A CO-ORDINATED APPROACH IN NORTHERN IRELAND

Strategic Context

3.1 The Minister of Justice is committed to a co-ordinated, long-term and

sustainable approach to addressing the needs of women offenders in

Northern Ireland. This includes promoting a cross-cutting programme of work

at a strategic level, maximising the opportunities to address the social factors

that contribute towards offending and re-offending by women and improving

current service delivery.

3.2 The draft strategy was subject to public consultation from February to

June 2009. There were a number of consultation events including a workshop

with staff and prisoners from Ash House. A “Summary of Responses”

published in November 2009 reflects the range of views expressed by all

those who participated in the consultation process.10

Vision

3.3 The extensive consultation proved valuable and highlighted the breadth

of support for the overall vision for the draft strategy:

“To provide a criminal justice system in which the particular needs of

women offenders and those at risk of offending are recognised and

addressed, and effective pathways out of crime are delivered.”

Outcomes of the strategy

3.4 It is envisaged that successful outcomes for this strategy will be:

• Reduced offending and re-offending amongst women.

• A range of women-centred interventions available within the

community to support women offenders and those at risk of

10Copies of the Draft Strategy for the Management of Women Offenders in Northern Ireland

and the Summary of Responses to the Draft Strategy are available from www.nio.gov.uk



17

offending, and to help women desist from offending behaviour at

an earlier stage.

• Custody being used only for those women who have committed

serious and violent offences.

• A better experience and outcome for those women who receive

a custodial sentence.

• More effective rehabilitation and re-integration of women

offenders into the community.

Structure of the Strategy

3.5 Building on the draft strategy, and incorporating responses to the

consultation, this strategy supports an integrated approach to managing

effectively all women who are offenders or who exhibit offending behaviour.

The strategy covers the period 2010-2013 and is broken down into 4 strategic

strands. Each has a strategic aim and a number of key initiatives which, in

turn, are supported by a number of actions detailing work being taken forward.

3.6 The detail of the four strands is set out in Chapters 4 to 7, and an

Action Plan is included at Annex 1. A number of action points which have

already been taken forward are listed at Annex 2. The planned activities, to

complete outstanding actions, are set out in subsequent chapters.



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CHAPTER 4

STRATEGIC STRAND 1

PROVIDING ALTERNATIVES TO PROSECUTION & CUSTODY

Background

4.1 Whilst imprisonment and non-custodial sentences provide options for

dealing with offenders on the basis of the risks posed and the seriousness of

the offence, there are a range of offences at the lower end of the spectrum

which offer the opportunity for alternative diversionary approaches.

Prosecuting minor offences through the courts, particularly those committed

by persons unlikely to persistently re-offend, may not always be the most

appropriate and effective way of delivering a proportionate justice outcome.

4.2 Receiving a criminal record for a minor offence may also have a

significant long term impact on employment prospects and on the ability of

individuals to lead law-abiding lives after a period of offending. That is not to

say that low-level offending should be ignored. What is important is that the

offence is acknowledged and, where appropriate, the harm caused to victims

is repaired and the root cause of offending behaviour is tackled in a

meaningful way.

4.3 The draft strategy highlighted a number of initiatives being developed.

These included alternatives to prosecution and making use of electronic

monitoring.

Strategic Aim: To provide alternatives to prosecution and custody by

looking at alternative diversionary approaches in relation to lower level

offences, where prosecution through the courts may not be the most

effective way of delivering a proportionate justice outcome; or where non-

custodial sentences might achieve a better outcome than imprisonment.



19

Key Initiatives

New Legislation

4.4 A wealth of research indicates that too many women still end up in

prison when their offending behaviour could be better addressed through a

range of more creative and constructive alternatives. For some women,

custody will be the proportionate response. However, to be truly effective, the

criminal justice system must also provide alternatives which give the courts

greater opportunity, where appropriate, to apply sanctions that enable the

complex needs of women offenders to be addressed more effectively in the

community.

4.5 Legislation is required to develop diversionary measures that will act as

an alternative to traditional prosecution through the courts for women, and

other offenders, admitting to relatively low level criminal offences. Provisions

to provide alternatives to prosecution are included in a draft Justice Bill due to

be presented to the Assembly in autumn 2010. The target date for new

legislation to be enacted is May 2011.

Action- ‘ To have new legislation enacted which expands the range of

alternatives to prosecution and also reduces committal to custody for

fine default and to implement in line with available resources.’

4.6 Subsequent to the publication of the draft strategy, it was recognised

that legislation was required to improve the defences available in cases wherekilling occurs as a result of sustained physical abuse. Such a defence would

be particularly important for vulnerable women in what are often tragic

circumstances. New powers have been created and it is envisaged that

improved statutory defences will come into force by December 2010, covering

those vulnerable and abused women who are involved in domestic homicide

cases.



20

Action- ‘To provide improved statutory defences for vulnerable and

abused women involved in domestic homicide cases.’

Alternatives to Custody

4.7 The draft strategy highlighted the need to identify possible

enhancements to existing community disposals, or the development of

additional interventions, to support the increased use of non-custodial

sentences. A discussion paper examining whether the current community

sentencing framework provides a sufficiently wide range of robust disposals

for lower risk offenders is being prepared for public consultation. This is

expected to be published by December 2010.

Action- ‘To review the pathways to custody for women offenders to

identify areas where enhancements to existing community disposals, or

the development of additional interventions, could support greater

judicial use of non-custodial (as opposed to custodial) sentences in

appropriate cases.’

Electronic Monitoring

4.8 Electronic monitoring (“tagging”) has been available in Northern Ireland

from April 2009 to support the monitoring of curfews. Electronic monitoring is

not the same as satellite tracking and is designed purely to show whether

someone is in their place of curfew during the hours of their curfew. An

electronic monitoring requirement can be directed in a variety of ways and the

associated curfew can be adapted to suit the needs of the individual. Forexample, it can be used as a condition of bail, potentially reducing the levels

of women remanded to custody.

4.9 Electronic monitoring can also be applied as part of a community

sentence: a woman so monitored can remain at home with her family, and

undertake education, training, work or rehabilitative programmes in the

community. It is hoped that this will, in many cases, have a positive impact on

women offenders, possibly contributing to a reduction in re-offending. The



21

comment made by most respondents to the consultation was that electronic

monitoring must be used only in appropriate circumstances and that it should

be independently monitored.

4.10 Work is continuing to promote the effective use of electronic

monitoring, and there is no evidence of its inappropriate use. Between 1 April

2009 and 31 August 2010, 31 electronic monitoring orders were imposed by

the courts on women as a condition of their bail curfew.

Action- ‘To continue to promote the use of electronic tagging for

monitoring compliance with bail curfews as an alternative to remanding

women in custody.’

Fine Default

4.11 Most respondents to the consultation agreed that it is necessary for

sentencers to be appraised of the issues that underlie many women’s

offending behaviour, and to be made aware that these problems were often

better addressed outside prison. It was also suggested that sentencers

should be made aware of the low level of some women’s income, so that they

could better appreciate the full impact of fines and how inappropriate they can

be in some cases.

4.12 Better information for sentencers on incomes, reminder systems ahead

of default, and community alternatives instead of custody (where default

occurs) will all be important developments. Reminder systems are already

very effectively in place and powers now exist to progress community

alternatives to custody. An information initiative to highlight existing options

for payment and to emphasise the importance of providing information on

offender’s financial circumstances to courts will be in place by March 2011.

Action- ‘To improve the information provided to courts on women

offenders’ financial circumstances.’



22

Mental Health

4.13 There is a need to improve the processes for diverting women

offenders with mental health problems and personality disorders away from

prison. Since the publication of the draft strategy, work led by Department ofHealth Social Services and Public Safety (DHSSPS) has been continuing to

ensure that new mental capacity legislation will be introduced into the

Assembly by December 2011. Agreement has been reached with DHSSPS

on a joint criminal justice/health legislative approach.

4.14 A Criminal Justice Board sub-group has been established to take

forward the recommendations of the Criminal Justice Inspection NorthernIreland (CJINI) report, ‘Not a Marginal Issue – Mental Health and the Criminal

Justice System in Northern Ireland.’ The report’s key conclusions are that:

early assessment and screening of mentally disordered offenders is critical;

diversion from custody should be a core objective; systems and quality of care

should be improved; and there should be better coordination and collaboration

across criminal justice agencies and with key health partners/providers.

Action- ‘To continue to work with other Government departments to

improve the processes for diverting women offenders with severe

mental health problems away from the criminal justice system.’



23

CHAPTER 5

STRATEGIC STRAND 2

REDUCING OFFENDING

Background

5.1 The Programme for Government gives a commitment to reducing

offending and dealing with its consequences. Addressing women’s offending

is a key strand of the work being taken forward to develop a reducing

offending strategic framework for the criminal justice sector of Northern

Ireland.

5.2 This work also has relevance to the forthcoming Community Safety

Strategy, which will seek to create opportunities offering alternatives to

involvement in crime and to support the rehabilitation of offenders.

5.3 This strategy aims to reduce offending amongst women by drawing on

the strategic framework for reducing offending aimed at targeting pathways

that contribute to offending and re-offending; developing restorative

interventions; and carrying out gender-specific research. The consultation

highlighted a range of views on how to reduce offending amongst women and

the following key initiatives are being taken forward.

Strategic Aim: To reduce the number of women entering the criminal

justice system, by supporting women who are at risk of offending and

responding effectively to their needs in relation to issues such as abuse;

domestic violence; mental well-being; substance misuse; poverty; isolation

and unemployment; and by directing women out of pathways that lead to

crime.



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Key Initiatives

A Partnership approach- establishing a Ministerial Group on Reducing

Offending

5.4 The draft strategy stressed that while much can be done to address

offending behaviour within the criminal justice system, a justice-based

approach is not enough. To be really effective, a coherent cross-government

approach is essential to addressing the pathways to offending behaviour, as

well as dealing with its consequences.

5.5 Experience in Great Britain and elsewhere has shown that establishing

effective partnerships and developing a co-ordinated, cross departmental and

inter-agency approach is vital to reducing offending. A cross-Government

approach should assist Departments and agencies in identifying how their

policies and practices can impact on women’s offending, and provide a

valuable impetus to co-ordinated action. In Great Britain, the previous

administration set up a Ministerial sub-group specifically to address women’s

offending and to guide cross-departmental developments in this field.

5.6 Work is progressing on the development of a Reducing Offending

Strategic Framework covering the criminal justice system, and a broad

collaborative approach between all relevant interests across government is

required to identify and address the underlying contributory factors leading to

offending behaviour. The aim is to promote early and targeted interventions

as a means of “heading off” future offending. This “systems” approach to

addressing offending is important in identifying it as a challenge to

Government as a whole rather than to the criminal justice system.

5.7 To take this forward, The Justice Minister undertook a series of bilateral

meetings with other Executive Ministers in the summer to discuss the way

forward in terms of a government wide approach to reducing offending.

Respondents to the consultation broadly welcomed the proposed approach,

and machinery to take forward collaborative working will be put in place in

autumn 2010.



25

Action- ‘To develop a cross-departmental approach to Reducing

Offending, to promote and facilitate the development of a coherent

Northern Ireland response addressing all aspects of offending

behaviour.’

Addressing Offending Behaviour – The Pathways

5.8 Research has shown that there are a number of social factors which

contribute to offending and re-offending. These were previously embedded

within the NIPS/PBNI Resettlement Strategy, launched in June 2004, as 7 key

“pathways” around which partnerships helped to support offender

management and reduce re-offending by addressing personal needs.However, it has since been recognised that the original 7 pathways failed to

take account of two issues that are of particular significance to women -

women who have been abused, raped or who have experienced domestic

violence; and those who have been involved in prostitution.

5.9 These issues have now been adopted as pathways 8 and 9, and are

now part of the gender-specific approach to reducing offending, through

supporting women who offend and those at risk of offending in Northern

Ireland.

5.10 The Government is committed to focusing on these 9 pathways to meet

the needs of women in the criminal justice system through a multi-agency

approach. To ensure that the pathways lead to women offenders and those at

risk of offending being able to access mainstream and specific services, work

is being focussed on a number of fronts, both in the community and in

custody.

5.11 PBNI continue to work with NOMS and other health and criminal justice

agencies to develop interventions and programmes for best practice, aimed at

specific needs of individuals to reduce offending behaviour. This includes

strategies targeting gender specific programmes and interventions, including

mental health, personality disorder and learning disability needs.



26

Pathway 1 - Accommodation

5.12 Problems with homelessness are often linked to offending which is

often complicated by mental health issues. Accommodation for women

offenders in the community is currently provided through the Northern Ireland

Housing Executive (NIHE) Homeless Advice Unit, through access to voluntary

sector accommodation. PBNI have service level agreements with the Must

hostel and Women’s Aid, to provide dedicated provision within approved

accommodation.

5.13 PBNI is represented on the Strategic Management Group of Supporting

People which is an NIHE programme aimed at preventing homelessness. Itworks by supporting vulnerable people at risk of homelessness to maintain

their independence, or by assisting people who are already homeless to

regain a level of independence so that they can mange a tenancy on their

own.

5.14 The INSPIRE Women’s Project as detailed in chapter 6, focuses on

developing women-specific community programmes on a ‘day’ basis. It is notset up or resourced to operate as a hostel but it offers real scope to develop

creative partnership arrangements with community-based women’s

organisations which provide accommodation under “Supporting People”, such

as women’s groups and housing associations.

5.15 In custody, the “Housing Advice in Prison Project”, funded by NIHE and

NIPS, is aimed at assisting in the prevention of homelessness amongst those

leaving prison, thereby enhancing their opportunities for rehabilitation and

community re-integration, and contributing to the reduction of re-offending.

This is achieved through direct delivery of advice and support services within

prisons by the Housing Rights Service (e.g. advocacy/representation services

to those prisoners with more complex housing issues; a specialist housing

consultancy/support and referral service to those advisers and resettlement

staff currently operating in the prisons).



27

5.16 The Housing Rights Service also uses the evidence gathered from this

work to identify barriers and bring about improvements in housing policy,

practice and provision for those entering and leaving custody.

5.17 However, separately, there may be a potential need for dedicated

accommodation, outside of a prison setting, to be used for women

approaching the end of custodial sentences or, on occasions, as an

alternative to custody for appropriate women offenders. The advantage of

providing such hostel accommodation is that it could provide a real alternative

to sending women offenders to prison and facilitate the earlier, controlled

release of women from custody. It would, therefore, support and promote the

continued involvement of women in the community and so ease them back

into community-living after a period in custody. Against this, the number of

women that might require, or would elect to use, such hostel accommodation

is likely to be very small while the hostel would have to operate and be staffed

on a 24/7 basis.

5.18 A hostel would also have a fixed location, which would, inevitably, limit

its capacity to build or sustain its residents’ links into their local communities,

which could be anywhere in Northern Ireland. Consequently, there are

concerns that such a hostel would be underused and would not prove cost-

effective, possibly drawing funds away from other priority women’s services at

a time when there is publicly funded “Supporting People” accommodation

readily available. There are strong advocates both for and against women’s

hostels in Great Britain, and further analysis is required in Northern Ireland to

test the need for, and viability of, such a facility locally.

5.19 Building on current provision, most respondents to the consultation

agreed that a multi-agency response was needed involving criminal justice

agencies, NIHE and community-based housing providers. An initial scoping

study will, in collaboration with other government departments, review the

accommodation needs of women offenders and vulnerable women and how

these are met by the current arrangements, with a view to providing support toexisting accommodation providers.



28

5.20 The position will be reviewed after the evaluation of the INSPIRE

Women’s Project. The target date for completion of this action is the end of

2011.

Action- ‘To review accommodation needs of women offenders and

vulnerable women, and existing arrangements, with a view to working in

partnership with other accommodation providers, taking cognisance of

the results of the evaluation of the INSPIRE Women’s Project.’

Pathway 2 – Education, Training and Employment

Addressing the learning and skills needs of women

5.21 There is strong evidence to suggest that many offenders have serious

deficits when it comes to basic skills, education and training, and that this

limits their capacity to avoid re-offending during and following periods of

supervision, or when released from custody.

5.22 The NIPS Learning and Skills Strategic Plan 2010-13 (launched by the

Minister of Justice on 28 July 2010), acknowledges the increasing recognition

of the importance of addressing the specific needs of women prisoners, as a

distinct group. One of the early objectives is a review of all learning and skills

services and a Working Group on Education, Training and Employment for

Women Prisoners has already been established to take forward progress in

relation to the provision of improved opportunities and facilities to keep

women purposefully occupied. A review of Essential Skills provision within

NIPS has also been carried out.

5.23 NIPS is also taking forward work on the specific needs of women in

relation to learning disability and other special needs including:

• developing user friendly screening tools for learning difficulties

and learning disabilities;

•

developing a matrix of support with specific referral routes andareas of staff and departmental responsibility;



29

• raising staff awareness of how these issues may manifest

themselves in the prison environment; and

• bringing forward specific women centred interventions, as

appropriate.

Action- ‘To further develop work within the Prison Service to address

the specific educational needs of women offenders, including where

needs have been identified in relation to learning disability and other

special needs.’

Employment needs of women offenders

5.24 The employment needs of women offenders can be complex and might

have to be balanced against family responsibilities making it more difficult to

find suitable employment opportunities on release. Since publication of the

draft strategy, Northern Ireland Association for the Care and Resettlement of

Offenders (NIACRO) has introduced a Jobtrack Women’s Project.

5.25 This is a pilot initiative which targets both women in the community and

custody to gather information about the needs of women offenders and to

develop an effective model of engagement to support their learning and skills

development with a view to accessing the labour market. An employment

officer’s post was created to work specifically with women in Ash House and

the INSPIRE Women’s Project. The programme works on motivation, and

delivers direct training interventions to ensure that individual employment

action plans are achieved. It also helps to identify suitable employment

opportunities and support with the job application process.

5.26 The Jobtrack Women’s Project pilot commenced in October 2009.

During 2009/10, 35 women were referred to Jobtrack. Of these referrals 33

were by PBNI and 2 were referred by NIPS. Considering those with sole

responsibility for the care of children, 46% of women participating in Jobtrack

were lone parents, the comparable figure for men was 4%. This illustrates theneed for separate provision tailored to the needs of women offenders.



30

Action- ‘To further examine how the employment needs of women

offenders can be addressed as a discrete group.’

Access to community resources

5.27 PBNI and NIPS have established the Ash-INSPIRE Resettlement

Initiative as a means of providing information, support and access to

community resources for women prisoners, as they move towards release and

resettlement within the community. The Initiative involves working with a

wide-range of services and interventions through the INSPIRE Women’s

Project, including the services of the Women’s Community Support Project

(WCSP).

5.28 As part of this new initiative, representatives of the women’s community

centres linked to the INSPIRE Women’s Project visit Ash House regularly, and

all women prisoners there have access to the advice and information they

provide, and to the links they can facilitate to women’s centres or other

services in the community in preparation for release. The intention is to

provide a seamless service, tailored to the individual needs of each woman,

ensuring that interventions are co-ordinated with, and inclusive of, the network

of support that already exists within the local communities to which the women

are returning.

Learning and Skills Forum

5.29 The draft strategy recognised that an over-arching, co-ordinated

approach is needed to improving the learning and skills of offenders. To

facilitate such an approach, a cross-Department Learning and Skills Forum

has been formed to explore ways to improve the coordination of education

and skills provision, leading to reduced levels of re-offending. The forum,

chaired by the DoJ has representatives from Department of Education (DE),

Department for Employment and Learning (DEL), NIPS, YJA and PBNI. A

Learning and Skills Workshop was held in July 2009 to establish a baseline of

connections and provision to inform development work.



31

5.30 An Information Sharing subgroup was also established to identify gaps

in, and duplication of, data; to strengthen communication lines; and to develop

protocols for sharing and transferring information. The subgroup has

identified the information on a learner that needs to be shared between NIPS,

PBNI, YJA, DEL, Education and Library Boards (ELBs), Schools and Further

Education (FE) Colleges/Training Organisations. The work of the Learning

and Skills Forum will be further developed and progressed by the end of 2011.

Action- ‘To further develop and progress the work of the Learning and

Skills Forum which will focus on making better use of existing education

and skills training to provide a more joined-up service for existing

offenders, and those at risk of offending.’

Pathway 3 - Health

Mental health

5.31 Mental health/well-being is often a key factor in women’s offending. In

many cases serious mental illness or personality disorder leads to women

experiencing social exclusion and chaotic lifestyles. Baroness Corston reports

that up to 80% of women in prison in England and Wales have diagnosable

mental health problems and the Thematic Report by HMIP states that 49% of

women in prison interviewed in 2006-08 had an emotional well-being or

mental health problem.

5.32 PBNI’s June 2010 desktop study of the needs of women offenders

under supervision indicated a relatively high prevalence (44%) of womenoffenders in Northern Ireland with mental health issues. A number of

respondents to the consultation considered mental health fundamental to the

success of many elements of the overall draft strategy and the commitment to

provide new services for those deemed ‘high risk’ was deemed a positive

development.



32

Personality disorder

5.33 The DHSSPS published ‘The Northern Ireland Personality Disorder

Strategy,’ on 29 June 2010 which includes a number of recommendations with

a criminal justice focus. For example, the strategy recognised that there is ahigh prevalence of personality disorder among those in contact with probation

and also within prisons (60-80%). It is estimated that 31% of women

prisoners have anti-social personality disorder, which is characterised by

disregard for social norms, an inability to maintain relationships and low

thresholds for frustration and aggression.

5.34 Although there are fewer numbers of women in prison, proportionatelywomen are more likely than men to commit suicide when in prison and five

times more women self harm in prison than men. The strategy recommended

that the Health and Social Care Board (HSCB) and Public Health Agency

(PHA) should work in partnership with Criminal Justice Agencies to develop

as a priority, services to address the gender-specific needs of such

personality disordered individuals both within prison and in the community.

Action- ‘To establish joint working groups with relevant parties to

ensure development of cohesive integrated services for women with

mental health difficulties in prison and in the community who exhibit

offending behaviour.’

Prison Healthcare Strategy

5.35 The transfer of lead responsibility for prisoner healthcare to theDHSSPS took place in April 2008, and the South Eastern Health & Social

Care Trust (SET) has been working in partnership with NIPS to develop a

comprehensive Prison Healthcare Strategy for 2009 to 2014. The Prison

Healthcare Strategy aims to provide an effective mechanism for responding to

the healthcare needs of prisoners, including the delivery of gender specific

services, and interventions to address the needs of women prisoners.



33

5.36 With regard to women prisoners, the Prison Healthcare strategy will:

• review their health needs and develop specific objectives around

issues such as gynaecological health, sexual health, past

abuse/domestic violence, and mother and baby;

• assess the mental health needs of women prisoners and provide

appropriate interventions, on a multi-agency basis, in relation to

mental health issues and personality disorder;

• assess the needs of women prisoners in relation to addiction

and develop options for the delivery of a response tailored to

women’s needs;

• work to create a more therapeutic environment for the promotion

of women’s health and well-being;

• assess the specific needs of particular groups of women

prisoners, including foreign nationals and women from a black or

minority ethnic background, older women, young women, and

women with disabilities; and

• develop gender specific standards for healthcare.

5.37 Work on the Prison Healthcare Strategy is well advanced.

Commissioning documents have been issued from the Health and Social Care

Board.

Pathway 4 - Alcohol and Substance Misuse

5.38 Drug addiction (including prescribed drugs) is now a significant factor in

much offending, but as Baroness Corston’s report highlighted this seems to

be disproportionately the case with women, who often have more complex

poly-substance misuse. A snap shot view of women prisoners in Northern

Ireland early in 2008 shows that half had a history of alcohol misuse, with 40%

misusing drugs.



34

5.39 In addition, a needs analysis of women offenders under PBNI

supervision on 30 June 2010 found that 32% had alcohol related problems, a

further 9% had drug problems and 16% had problems with both alcohol and

drugs, all related specifically to their offending behaviour. These problems

range in severity and therefore require a spectrum of interventions to

effectively address these diverse needs.

The Drugs and Alcohol strategy for Northern Ireland

5.40 Effective delivery of interventions to deal with alcohol and substance

misuse makes an important contribution to a woman offender’s ability to

engage in programmes and activities that might contribute to herrehabilitation.

5.41 The DHSSPS-led Drug and Alcohol strategy for Northern Ireland, 11

published on May 2006, identifies a number of key priorities including a

measure to specifically target those who are vulnerable and at risk. Those

specified as being included in this category are: the homeless, people living

with domestic violence, sex workers, ex-offenders, people with mental health

problems, street drinkers and people with learning disabilities.

5.42 Commitments in the strategy include reviewing local treatment and

support services; and, if necessary, developing new services across a range

of settings for those deemed as high risk; as well as delivering a range of

regional and local programmes and projects that inform and educate families

about alcohol. PBNI continues to commission services from voluntary

organisations such as Northern Ireland Community Addiction Service

(NICAS); Breakthru; Reconciliation, Education and Community Training

(REACT); and Northlands to deliver focussed interventions for offenders with

alcohol and addiction problems.

11New Strategic Direction for Alcohol and Drugs 2006-2011 DHSSPS



35

Interventions in custody

5.43 To date, a needs assessment has been undertaken by the SET in

relation to addictions within the prison population. Gaps in service provision

have been identified and will be addressed within the Prison HealthcareStrategy. The key provider of services within prisons is the AD:EPT Drugs

and Alcohol Service, which offers a range of services to those who have

problems associated with the use of substances.

5.44 The service is funded by the SET, and is delivered in partnership with

NIPS, as part of a multi-disciplinary team approach in the prison

establishments, and in the community. In addition to approved substancemisuse programmes, the interventions provided are tailored to the needs of

individuals, and include harm reduction awareness sessions; addictions

assessment and individualised care planning; one to one casework; one-to-

one behaviour change counselling; and one-to-one pre-release work.

5.45 SET has appointed a sessional Consultant in Addiction Psychiatry and

two specialist Addiction nurses who provide clinical assessment and treatment

across the three prisons. This has enabled the provision of a Substitute

Prescribing service for those who are opiate dependant and also alcohol

and/or drug detoxification. The clinical team works in close partnership with

AD:EPT to provide a comprehensive service which replicates that available in

the community.

Action- ‘To continue to work with the South Eastern Health and Social

Care Trust (SET) and other agencies to develop and deliver services and

interventions based on assessed need.’



36

Pathway 5 - Finance, Benefits and Debts

5.46 Financial problems are often a major contributory factor in women’s

offending. Many women are on low incomes, and advice in relation to

managing money, accessing benefits and reducing debt can be an integral

part of the support they need to help prevent them re-offending.

5.47 NIPS and PBNI work in partnership with NIACRO to deliver budgeting

and money management skills, debt management services and benefits

advice to women offenders, both in prison and in the community. Since the

publication of the draft strategy, NIACRO has delivered a pilot project (from 1

October 2009 to 31 March 2010) involving employing a full-time specialistfinance services/money advisor working part-time in the prison and part-time

with the INSPIRE Women’s Project in the community, with the aim of

empowering women to take ownership and responsibility for their finances.

5.48 NIPS has since worked with NIACRO to build on this proposal, and a

new “Managing Money” training programme will be in place for women

offenders from October 2010. This will have a “modular” format, enablingwomen to complete the course in the community following release, if they

wish to do so. PBNI also provides funding for an APAC worker (Assisting

People and Communities) based within the INSPIRE Women’s Project to

support individual women in money management and budgeting skills.

5.49 Further initiatives include working with NIACRO, the Social Security

Agency (SSA), the British Banking Association and local banks to enable

women offenders to open bank accounts prior to release from custody. The

INSPIRE Women’s Project also refers women to a range of community

services including the Citizens Advice Bureau, and a variety of local women’s

centres.



37

Pathway 6 - Children and Families

Childcare

5.50 The difficulties caused by lack of childcare can impact adversely on a

woman’s ability to comply with the terms of any community disposal. The

INSPIRE Women’s Project is registered as a day care provider to enable

women with young children to attend programmes and meet with their

Probation Officer whilst their children are being cared for. The INSPIRE

Women’s Project also links into local Sure Start schemes for child care

provision from ages 0-4 years in local areas.

Maintaining family links in custody

5.51 Helping women to maintain their family ties is critical to reducing re-

offending (66% of women in prison in Ash House have children under the age

of 18). 12 Family Links is a NIACRO service commissioned by PBNI, YJA and

NIPS to provide both practical advice and support to families of all prisoners in

Northern Ireland. Recognising that a child whose parents are in custody can

suffer real trauma, the Family Links service involves contacting a family within

24 hours of receiving a referral from PBNI staff based within the prisons.

5.52 NIPS is working with Barnardo’s to take forward a comprehensive

Family Strategy. Key elements of the strategy include providing information,

advice and support to families; and giving assistance with visits, including

family visit arrangements, and family programmes. It is intended that the

Family Strategy will evolve as new initiatives develop, and progress will be

taken forward through co-ordinated multi-agency working, including

Barnardo’s, NIACRO, the Quaker Service and NIPS.

5.53 A significant example of progress has been the development of

improvements in relation to visits, most notably the introduction, in December

2009, of the Extended Visits Scheme for Mothers and Children in Ash House.

This scheme enables mothers to have unsupervised visits of up to 6 hours

12Source: NIPS desktop exercise 30 August 2010



38

with their children in a safe and secure facility adjacent to Ash House. The

visits are intended to provide mothers with the opportunity to engage with their

children in positive activities and bond with them in a way that is not possible

in normal visits.

Action- ‘To further develop the NIPS Family Strategy for women

offenders in custody, exploring ways to enhance the range of family

services, including identifying improvements in relation to visits,

particularly child-centred visits, as well as wider family links issues.’

Role of the community and voluntary sector

5.54 Recognising the importance of the role of the voluntary and community

sector, as well as faith organisations, in providing support for women and their

families, PBNI and NIPS are continuing to work with relevant agencies, such

as Barnardo’s, on one-to-one support for women. This includes delivering

practical and emotional support for women offenders, using a variety of tools,

including life skills, parenting skills and relationship skills training both in Ash

House and in the community.

5.55 The Women’s Community Support Programme, a partnership project

between PBNI, NIACRO and the Women’s Support Network also provides a

programme for women in custody and in the community which contributes to

resettlement and maintaining links with family and the community.

5.56 Women attending the INSPIRE Women’s Project are also being

supported by the Barnardo’s Parenting Matters Project, which helps women

offenders develop parenting techniques and maintain relationships with their

children, alongside individual support programmes.



39

Pathway 7 - Attitudes, Thinking and Behaviours

5.57 Given that the background to women’s offending is often very different

from that of men, it is recognised that gender-specific programmes and

assessment tools for women offenders should not be adaptations of those

currently used for men.

5.58 To date, PBNI has completed a Programme options paper in relation to

gender-specific offending behaviour programmes. Programmes and

interventions have been identified, and a range of offending behaviour and life

skills programmes are being delivered. This includes the GOALS

Programme, which is offered to women subject to statutory supervisionattending the INSPIRE Women’s Project. GOALS is already delivered to

women in prison, and so this will help to create a more consistent approach.

5.59 The Addressing Substance Related Offending programme (ASRO)

will be introduced by PBNI in 2011. This programme has been accredited by

the Correctional Services Accreditation Panel (CSAP) and is appropriate for

women offenders.

5.60 Anger Management – PBNI’s preferred option is to make modifications

to the current Anger Management programme in order to cater for women,

drawing from the experiences of Leicestershire Probation, the 218 Project and

Together Women. PBNI will also introduce CALM, an accredited Anger

Management Programme in 2010. However the programme is not suitable for

women. The CALM team intend to adapt this programme for women over the

next few years, so it would be worthwhile to keep this programme in mind for

longer term delivery.

Action- ‘To research best practice and develop gender-specific

offending behaviour programmes for women offenders.’



40

Pathway 8 - Supporting women who have been abused, raped

or who have experienced domestic violence

5.61 The draft strategy identified the need to work with specialist services

identified in both the “Tackling Sexual Violence and Abuse Strategy” and the

“Tackling Violence at Home - A Strategy for Addressing Domestic Violence

and Abuse in Northern Ireland”, to provide greater support for women

offenders who have been abused, raped, or who have experienced domestic

violence.

Tackling Sexual Violence and Abuse

5.62 The Regional Strategy ‘Tackling Sexual Violence and Abuse’, is a joint

initiative between DHSSPS and NIO13 which sets out the commitment of

Government and its agencies, in partnership with voluntary and community

sector organisations, to adopt a consistent and long-term approach to the

prevention of sexual violence and abuse; and provide an effective and timely

response when it occurs.

5.63 One of the key commitments is to establish a Sexual Assault Referral

Centre (SARC) in Northern Ireland by December 2010. This will play a key

role in encouraging women to come forward to receive the help they need.

The SARC aims to deliver an integrated service to victims providing

immediate medical aftercare, ongoing practical and emotional support

services and a supportive gateway to the criminal justice system for those

reporting offences committed against them.

Tackling Violence at Home

5.64 “Tackling Violence at Home”, a 5 year strategy for addressing

domestic violence and abuse in Northern Ireland is implemented through a

series of annual action plans and initiatives. To date these have included a

series of media campaigns to increase awareness; the provision of a 24 hour

free phone domestic violence helpline; routine enquiries at maternity units so




41

that help and advice can be offered if domestic violence is disclosed; and an

information leaflet for victims on how the law can help.

5.65 These strategies are not gender-specific, however, the ‘Tackling

Sexual Violence and Abuse’ strategy states that the majority of victims are

women and the ‘Tackling Violence at Home’ strategy states that women are

more likely to experience domestic violence than men (1 in 5 women

compared to 1 in 9 men will experience domestic violence in the course of

their lifetime).

5.66 All respondents to the consultation stressed the continuing need to

provide psychological therapeutic support and services for women who have

been victims of abuse, both in the community and in custody.

Strengthening legislative powers to protect the most vulnerable

5.67 Key provisions of the Domestic Violence Crime and Victims Act 2004

were specifically targeted at providing extra protections for women. Common

assault was made an arrestable offence to provide police with sufficient

powers to take action in domestic violence cases - even in cases where the

victim felt unable to press charges. Restraining orders were made available to

the court on acquittal.

5.68 Previously protection from harassment was only available on conviction

but this was extended to provide extra powers in domestic violence cases.

New powers are now being created to improve the defences available in

cases where killing occurs as a result of sustained physical abuse – this is

particularly important for vulnerable women in what are often tragic

circumstances. However, there is a need to build on these developments and

to work with specialist services to provide greater support for those women,

both in custody and in the community, with emotional needs related to issues

such as domestic violence, rape, and abuse.



42

5.69 Further work is being taken forward in relation to this issue – PBNI

has, for example, introduced the Integrated Domestic Abuse Programme

(IDAP), a new Domestic Violence Programme currently operating in 4 sites in

Northern Ireland. PBNI and NIPS are also fully participating in Multi-Agency

Risk Assessment Conferences (MARAC) and Public Protection Arrangements

Northern Ireland (PPANI) which were introduced to Northern Ireland in

January 2010.

5.70 Nurses on the Healthcare staff at Hydebank Wood, have also worked

in partnership with Women’s Aid to develop a specific domestic violence

programme for the women prisoners in Ash House. This will be delivered in

autumn 2010.

Action- ‘To work with specialist services to provide greater support for

women offenders who have been abused, raped, or who have

experienced domestic violence.’

Pathway 9 - Supporting women who have been involved in

prostitution

Research into women involved in prostitution

5.71 The draft strategy identified the need to work with specialist services to

provide greater support for those women, both in custody and in the

community, with needs related to their involvement in prostitution. Most

respondents to the consultation felt that expertise in this area should be

sought to gain greater understanding of how women become involved inprostitution and of their specific needs and that a study of best practice from

other jurisdictions should be commenced. A research paper is currently being

developed and the target date for this to be published is November 2010.

5.72 A range of organisations have been contacted regarding prostitution in

Northern Ireland and the support that is available for the women involved and

lessons learned from best practice in other countries have been incorporated

into the research. In addition, the research paper identifies the laws relating



43

to prostitution in Northern Ireland and highlights the scale of the issue and the

locations where it is believed to be most prevalent.

5.73 The research also identifies a number of issues that women involved in

prostitution in Northern Ireland are likely to encounter, for example, drug

addictions, experiences of being in care, domestic violence, homelessness

and mental health problems. In addition to focusing on the women involved in

prostitution, the research also refers to tackling the demand for prostitution.

5.74 When the research is published, PBNI and NIPS will work with DoJ to

develop a response to the findings by early 2011. The organisations will

address what interventions might be made available to support women

involved in prostitution in Northern Ireland.

Action- ‘To publish the research paper on prostitution and human

trafficking in Northern Ireland and identify what supportive interventions

might be made available.’

Northern Ireland pilot scheme for providing support to victims of human

trafficking

5.75 Trafficking and the sex industry are fundamentally linked, as some

women may be trafficked into Northern Ireland and forced into prostitution.

The draft strategy set out a proposal to develop specific arrangements for the

care of women who are victims of human trafficking in Northern Ireland.

However, a DoJ pilot project is already in place to meet the Government’s

obligations under the Council of Europe Convention on the trafficking of

Human Beings. The pilot has been in place since April 2009 and the Minister

of Justice has recently extended it until the end of January 2011.

5.76 Through this pilot the Women’s Aid Federation and Migrant Helpline

provide comprehensive support services for potential victims of human

trafficking recovered in Northern Ireland. This includes access to secure

accommodation and healthcare as well as counselling, financial assistance



44

with living expenses, translation services and access to required legal

services. The Women’s Aid Federation offers support to women who are

victims of sexual exploitation and the Migrant Helpline offers support to victims

of domestic servitude or forced labour, for example Madams who have been

forced to work in brothels and also male victims of sexual exploitation.

Restorative Interventions

Adult Women

5.77 PBNI currently funds four Restorative Justice Projects in Belfast, Newry

and the North West, following the completion of successful pilots in Belfast.

Community Restorative Justice Ireland (CRJI) and Alternatives work in

partnership with PBNI to provide restorative interventions and to enhance the

prospect of effective rehabilitation. Alternatives and CRJI provide services to

women subject to community supervision, where required. Restorative

Interventions are also delivered through the PBNI Victims Unit.

Young People

5.78 The number of girls coming through the youth justice system is small.

For those who do, the YJA adopts an individually tailored plan to address their

offending behaviour and meet their needs. The YJA has a particular focus on

the prevention of offending and re-offending and their innovative Youth

Conference Service is a world leader in bringing young people face to face

with victims of their crimes. There is a growing body of evidence that this type

of restorative approach and diversionary work is particularly successful in

keeping young people away from further criminal behaviour.

5.79 The YJA also works with statutory and voluntary partners in Children

and Young People’s Committees in each of the four Health and Social Service

Board areas in the development of strategies to prevent offending and

promote positive outcomes for children and families.



45

Gender-specific research

5.80 In the development of the draft strategy, the lack of relevant data on

women offenders in Northern Ireland was a recurring theme. To effectively

target offending, its causes and the impact of interventions, there is a clear

need for more information that is specific to women offenders. Subsequent to

the draft strategy, the following two research papers have been published.

5.81 “Reducing Offending: A Critical Review of the International Research

Evidence ,” 14 was published by the NIO15 in February 2009. This independent

report provides a review of the effective interventions used to reduce crime

internationally (in particular in Ireland and the UK). The research was used toprovide a discussion base to inform subsequent debate on developing a

Reducing Offending Initiative which is currently being progressed by the DoJ.

5.82 “Addressing Offending by Women: A Literature Review ,” 16 was

published by the NIO17 in January 2010. The report provides a review of

recent published literature relating to women's offending behaviour and

approaches adopted to address offending by women. The aim of theresearch is to improve the approach to the management of women offenders

in Northern Ireland, both in the community and in custody, taking account of

the need for gender awareness in addressing offending by women.

5.83 PBNI will be participating in the Desistence Knowledge Exchange

(DesKE) project aimed at advancing the exchange of knowledge between

policy makers, academics, service users and practitioners, on desistance and

how supervision practices can support this process.

14Copies can be obtained from www.nio.gov.uk

15

Now the Department of Justice16Copies can be obtained from www.nio.gov.uk




46

5.84 In addition to the above pieces of research, an updated statistical

report on gender and the Northern Ireland criminal justice system has been

included in the 2010/11 work programme for the Statistics and Research

Branch of the Justice Policy Directorate, and is due to be completed by mid

2011.

Action- ‘To compile an updated statistical report on gender and the

Northern Ireland criminal justice system by mid 2011.

5.85 Information on women offenders is currently collated by NIPS and

PBNI in a similar manner to that collated for men offenders. In addition to

reviewing the current information held, PBNI and NIPS will undertake a joint

exercise to identify the needs of women offenders and highlight any potential

gaps in the data collected. The target date for completion of this action is

October 2011.

Action- ‘To review the current information collated on women offenders

against their specific needs and identify any gaps in the data

requirements.’



47

CHAPTER 6

STRATEGIC STRAND 3

INSPIRE WOMEN’S PROJECT- GENDER-SPECIFIC

COMMUNITY SUPERVISION AND INTERVENTIONS

Background

6.1 Statistics on reconviction in Northern Ireland suggest that community

supervision is effective in reducing re-offending. Figures for the 2007 offender

cohort show that the 12 month re-offending rate for offenders subject to a

Probation Order was 25%, for those subject to a non-probation order

community sentence was 32%, and for those discharged from immediate

custody sentences was 38%. Of those offenders who received a Probation

Order, 20% of women and 27% of men reoffended within 12 months; the

corresponding figures for those subject to a non-probation order community

sentence are 18% for women and 34% for men. Of those discharged from an

immediate custody sentence in 2007, 47% of women reoffended within one

year, compared to 38% of men.

6.2 The draft strategy emphasised that more could be done to address

women’s re-offending, noting that there were very few interventions designed

specifically for women. The development of interventions has been focused

on male offenders, who comprise a much larger segment of the offender

population.

Strategic Aim: To ensure that, where women are sentenced, their

needs, wherever possible, are met in the community. That means

offering women gender-specific assessments and women-centred

interventions to support them in the community. This includes piloting the

INSPIRE Women’s Project in the Belfast area as well as the use of the

existing network of community resources to bring a multi-agency

partnership approach to directing women to appropriate services.



48

6.3 Interventions based upon male offending characteristics may not be

appropriate for women, who have different offender characteristics and needs.

Women receiving Probation Orders who receive additional requirements such

as the Alcohol Management or Anger Management Programme may end up

completing this work on a one-to-one basis, rather than within a group as

intended, given the small number of women offenders in any particular area.

6.4 The opening of The INSPIRE Women’s Project in Greater Belfast area

has allowed such programmes to be delivered on a group basis. However, it

is recognised that programmes will continue to be delivered on a one-to-one

basis in rural areas of Northern Ireland, given the relatively low numbers of

women offenders in those areas.

Key initiatives

INSPIRE Women’s Project Pilot

6.5 Baroness Corston’s report examined how services and interventions for

women offenders are delivered, both in prison and within the community. She

was particularly impressed by the model of the Women’s Centre as a referral

centre for women who offend or who are at risk of offending, and she

concluded that these centres are able to provide much-needed support for

women with particular vulnerabilities to take responsibility for their lives.

Taking on board Baroness Corston’s findings, PBNI, NIO18 and NIPS

coordinated the piloting of the Women’s Centre concept in Northern Ireland.

6.6 The INSPIRE Women’s Project became operational from a temporary

base in the Belfast area on the 27 October 2008, under the direction and

staffing of PBNI, and moved to a city centre location in December 2009. The

then Criminal Justice Minister, Paul Goggins MP, officially opened the new

premises on 12 January 2010.




49

6.7 The aim of the INSPIRE Women’s Project is to develop and deliver in

the community a new, enhanced range of women-specific services, which

directly contribute to reducing women’s offending through targeted

community-based interventions. The pilot, which will run until March 2011,

was established as a test-bed for developing and refining a range of women-

specific services to meet the needs of women offenders.

6.8 The project, once fully developed, should be influential in shaping

future community-based provision, and will provide a model for a managed

roll-out of women-focused services beyond Belfast.

6.9 The INSPIRE Women’s Project takes account of related research in

Northern Ireland and lessons from the establishment of women offenders’

services elsewhere. In both prison based analysis and PBNI research, the

needs of women offenders in Northern Ireland largely mirror those identified

by comparable research in other areas of the United Kingdom and the

Republic of Ireland.

6.10 Since it’s opening, INSPIRE’s caseload has averaged at 150 women

offenders from the Greater Belfast area, which includes Belfast,

Newtownards, Bangor and Downpatrick. Links have also been developed

with PBNI staff supervising women offenders in Newtownabbey, Carrickfergus

and Larne to ensure that women from these areas have access to the

INSPIRE Women’s Project.

6.11 The target group of women offenders who make use of the INSPIRE

Women’s Project are women on statutory supervision orders and women

whose court cases have been adjourned for Pre-Sentence Reports.

6.12 The INSPIRE Women’s Project delivers a number of programmes for

users, some are gender-specific and most are delivered to a women only

group. The Think First Programme, a cognitive behaviour programme is

suitable to be delivered on a mixed gender basis.



50

6.13 Programmes delivered within INSPIRE include, GOALS UK - a

motivational primer course, Offending Behaviour Programmes such as Think

First, Alcohol Management and Anger Management.

6.14 The INSPIRE Women’s Project also provides personal development

programmes such as a Creative Arts Programme, and an Art Therapy

Programme. In addition to this, Barnardo’s deliver the Parenting Matters

Programme; the Forum for Action on Substance Abuse/ Forum for Action on

Suicide Awareness (FASA) provides individual counselling sessions and

stress management programmes; and the Duke of Edinburgh Award

programme commenced in March 2010.

6.15 PBNI, DoJ and NIPS are all fully committed to using the INSPIRE

Women’s Centre as a spring-board for subsequent developments to meet the

challenge of identifying the precise components of the community-based

women’s services that are needed in Northern Ireland. The principle of

partnership runs throughout the work of the Project, as well as through all of

the work aimed at reducing offending. As the pilot develops, inter-agency and

cross-sectoral working and co-operation should increase, resulting in the

better targeting of resources on the needs of women offenders in the

community.

The Ash-INSPIRE Resettlement Initiative

6.16 Strong links have been forged with the women’s prison (Ash House at

Hydebank Wood) and PBNI and NIPS have been piloting the “Ash-INSPIRE

Resettlement Initiative”. This resettlement initiative, in place since January

2010, allows for the day release of suitable prisoners to the INSPIRE

Women’s Project. The women prisoners can participate in the programmes

and activities on offer at INSPIRE and are linked into services within the

community. The initiative has a focus on relationship building, ensuring that

women leave prison with direct links to both people and services that can help

to support their resettlement and thereby reduce re-offending.



51

The Women’s Community Support Project (WCSP)

6.17 The Women’s Community Support Project (WCSP), funded by the

LankellyChase Trust Foundation, is a partnership project involving PBNI,

NIACRO and the Women’s Support Network (WSN). Three women’s centresare also involved - Falls Women’s Centre, Shankill Women’s Centre and

Windsor Women’s Centre. The project also links to the other women’s

centres throughout the Greater Belfast area, including the Atlas centre in

Lisburn.

6.18 The WCSP has been established, under the auspices of the WSN in

the community, as a means of forging links and relationships between thecommunity-based women’s sector, NIACRO, the INSPIRE Women’s Project

and women in prison.

6.19 Together, the WSN and the WCSP can link women into the services of

over 50 community-based women’s centres, women’s projects and so on

across Northern Ireland. These centres provide a diverse range of services,

including education, training and employability programmes; advice clinics;

complementary therapies; life-coaching; arts and crafts; cookery; counselling;

and health and well-being programmes. They also offer programmes tailored

for specific groups such as young women and older women.

6.20 Representatives of the women’s community centres linked into the

INSPIRE Women’s Project also provide direct support to the women within

Ash House. They visit the women regularly, and all women prisoners now

have access to the advice and information that they provide, or to the links

they can facilitate to women’s centres and other services in the community, in

preparation for release. Additional visits to Ash House from representatives of

the women’s centres are made on an ad hoc basis where requested.



52

Partnerships with other external organisations

6.21 INSPIRE continues to establish links with external organisations that

provide services/advice to women. In addition to the linkages formed with the

WSN, relevant advice, guidance, training and services are provided by arange of other statutory, voluntary and community services including: the

Housing Rights Services; NICAS; Women’s Aid; NIACRO; FASA; REACT;

New Life Counselling Service; and Cruse Bereavement.

6.22 The INSPIRE Women’s Project has also forged links with women’s

centres in Scotland, England and Wales and the Republic of Ireland, to learn

from best practice elsewhere. A reference group, made up of representativesfrom other women’s centres, was established in 2009 to learn from and share

experiences.

Child Care

6.23 The INSPIRE Women’s Project has been awarded a certificate of

Registration to provide Child Care provision, approved by the Belfast Health

and Social Care Trust. This allows women who have responsibility forchildren to attend the Project for assessment for Pre-Sentence reports for

Courts and to participate in group work programmes. The INSPIRE Women’s

Project also makes use of other Child Care provision within the Community,

including crèche facilities within the Women’s Centres, and can refer to the

Surestart schemes within local communities.

Communications

6.24 A Communications Plan has been developed to support the INSPIRE

Women’s Project. The basis for all of the communications planning is a

commitment to openness and transparency and partnership working.

Underpinning all communications will be a respect for the privacy and rights of

those using the project. An internal poster and leaflet set is currently being

developed for the project.



53

Assessment

6.25 PBNI is currently redrafting its standards and service requirements on

Assessment and Case Management. Particular work has been undertaken to

ensure the standards are sensitive and responsive to the specific needs ofwomen offenders. PBNI will link the development of these standards to its

separate objectives in relation to the implementation of a new strategy for

community service; and to the development and implementation of new

practice standards to support delivery of the Criminal Justice Order (NI) 2008.

Action- ‘To review current assessment tools to establish the need for a

gender-specific approach.’

Evaluation of the INSPIRE Women’s Project

6.26 Most respondents to the consultation agreed that an evaluation of the

INSPIRE Women’s Project pilot should be conducted within 2 years of the

scheme beginning. An independent evaluation of the pilot is due to be

completed by December 2010. The evaluation will assess how well the

INSPIRE Women’s Project is meeting its aims and objectives. It will includequalitative research with the clients, staff and sponsors of the INSPIRE

Women’s Project as well as a quantitative assessment of clients’ progress.

6.27 The evaluation will also include a cost-benefit analysis of the INSPIRE

Women’s Project, comparing it with alternative mechanisms for service

delivery, and will incorporate approaches and information from evaluations

conducted on Women’s Centres elsewhere. The establishment of apermanent INSPIRE Women’s Project in Belfast will depend on the outcome

and recommendations of the evaluation and the resources that are available.

Action- ‘To complete an evaluation of the INSPIRE Women’s Project pilot

by December 2010 and, subject to the outcome and recommendations of

the evaluation, to establish a permanent dedicated INSPIRE Women’s

Project in Belfast.’



54

6.28 Building on the learning from the pilot and subject to its evaluation

being positive, it is envisaged that programmes and practices pioneered at the

INSPIRE Women’s Project will subsequently be carried to other parts of

Northern Ireland. The potential to roll out the INSPIRE Women’s Project

model throughout NI was widely welcomed by respondents to the

consultation. However, the way forward will again depend on the evaluation

of the pilot and the resources available.

Action- ‘Subject to the evaluation of the pilot being positive and

resources being available, roll out the programmes and practices

pioneered at the INSPIRE Women’s Project across Northern Ireland.’



55

CHAPTER 7

STRATEGIC STRAND 4

DEVELOPING A GENDER-SPECIFIC APPROACH TO THE

MANAGEMENT OF WOMEN IN CUSTODY

Background

7.1 For some women offenders there will be no alternative to custody,

either because of the severity of their offence, or for reasons of public

protection. Baroness Corston acknowledged, however, that “prisons are

being asked to do the impossible.” She concluded that many women in prison

have been failed long before they arrive at the prison gates, and that many

are simply too ill for prison to be an appropriate location for them.

7.2 While such women continue to be given custodial sentences, NIPS

recognises that it is critical to find ways to improve their experience of custody

and to respond to the considerable vulnerabilities that they often present.

7.3 The consultation process provided an opportunity for respondents to

share their views on developing a gender-specific approach to the

management of women in custody. This feedback has been used to build on

the work from the draft strategy, including the development of greater

opportunities for women to link into community support and resources whilst in

prison.

Strategic Aim: To develop a tailored approach to the management of

women in custody, recognising that men and women should be treated

with equivalent respect according to need and that this will result in

different approaches and services for men and women. This includes

implementing gender-specific standards and guidance for those working

with women prisoners.



56

Key initiatives

Accommodation

7.4 At present, women prisoners are accommodated in Ash House at

Hydebank Wood. This was originally a House of the male Young

Offenders Centre and, while there are discrete self-contained accommodation

units for the young offenders and the women, there are considerable shared

services and facilities.

7.5 In his 21 June 2010 statement to the Northern Ireland Assembly, the

Justice Minister emphasised his view that the current arrangements for

women at Hydebank Wood are not appropriate for the longer term, and

stressed the importance of thinking creatively to find ways that the current

arrangements can be improved within the resources likely to be available.

7.6 NIPS has conducted a comprehensive options appraisal and

developed a Strategic Outline Case in respect of providing a new, separate,

purpose-built facility. However, consideration of this was deferred for the

attention of the incoming Minister of Justice. The options appraisal is

currently being refreshed and the population estimates within the Strategic

Outline Case reviewed, to reflect the women’s population movements over the

last year and any impact arising from the implementation of the Criminal

Justice (NI) Order 2008. An updated Strategic Outline Case will be available

in the autumn of 2010, for consideration by the Justice Minister.

7.7 In the meantime, recognising that any new build facility would takesome years to develop and taking into account the availability of capital

funding, the Prison Service has been implementing a process of incremental

change within the current facilities available to women at Hydebank Wood to

promote a more gender-specific approach to the management of women in

custody. This includes taking forward a refurbishment of the ground floor of

Ash House, with the aim of providing tailor-made facilities for the delivery of

more gender-specific regimes for women prisoners, including work, educationand constructive activities. Work will begin in autumn 2010.



57

Action- ‘To take forward the case for the provision of a new, purpose-

built women’s prison facility, as well as interim measures to improve the

facilities within the current accommodation.’

Gender-Specific Standards

7.8 To underpin the new approach to the management of women in

custody in Northern Ireland, and to complement the development of this

strategy, NIPS published draft Gender-specific Standards for Working with

Women Prisoners in July 2009. These address all areas of the prison regime,

and are complemented by the development of a practical guide for staffworking with women prisoners.

7.9 The public consultation was completed in November 2009 and a

summary of the responses, together with revised gender-specific standards

(amended to reflect the outcome of the consultation), will be published in the

autumn of 2010. An updated guide for staff working with women prisoners will

also be published.

Action- ‘To publish the gender-specific standards for the women’s

prison that will underpin the implementation of a gender-specific

approach to all areas of custody.’

Offender Management- the impact of the Criminal Justice (Northern

Ireland) Order 2008

7.10 Following the introduction of the Criminal Justice (NI) Order 2008, new

offender management processes are now in place and helping to provide a

multi-disciplinary approach to addressing the needs of offenders, including

women. Women prisoners now benefit from the services of a multi-

disciplinary Offender Management Group established at Hydebank Wood.

This group specifically addresses key issues, referring prisoners for support

covering offending behaviour, addictions, learning and skills, employment and



58

family links. It helps to prepare women for release, including those being

released on licence or whose release is directed by Parole Commissioners.

7.11 The Offender Management Group allocates dedicated Sentence and

Case Managers who discuss release arrangements and supervision plans

with community based staff. At the appropriate stage of custody, the

Sentence and Case Managers also prepare all eligible women for release, to

support their rehabilitation and assess their readiness for returning to the

community.

Gender-specific guidance and training

7.12 NIPS accept that improvements to the physical environment must be

complemented by progress in respect of the prison culture. To that end, the

Service continues to foster an increased awareness of the need for respect

and reciprocal relationships between prisoners, and between staff and

prisoners.

7.13 Women prisoners, many of whom will have vulnerabilities, includingmental health problems, can be highly dependent on staff for emotional

support, and that this can be very stressful for staff. Appropriate training and

continuing support and supervision, needs to be available for all those staff

charged with meeting the complex needs of women in custody.

7.14 Most respondents to the consultation felt that staff training in gender-

specific issues in relation to mental health, trauma and personality/mood

disorders was essential. Disability awareness training was also considered

necessary.

7.15 Comprehensive gender-specific training for staff working with women

prisoners has been in place since January 2009, across a wide range of

disciplines and service providers. Training addresses issues such as: mental

health awareness; domestic violence and abuse; the effects of imprisonment

of a mother on her children, and how to support a woman in her parenting



59

role; self-harm – how to reduce its likelihood, and how to respond

constructively; respect for decency and privacy issues; promoting pro-social

behaviour; and addressing anti-social behaviour.

7.16 NIPS has also delivered Disability Awareness Training as part of its

Equal Opportunities Training Package; this is referenced in the Service’s

Diversity Training Package. In addition, in collaboration with Employers for

Disability NI (EFDNI), NIPS is delivering a dedicated awareness seminar,

incorporating the Disability NI DVD, to all staff. Gender-specific guidance for

staff working with women prisoners was published in July 2009, and is being

updated for publication in the autumn of 2010.

Sustaining progress

7.17 A comprehensive action plan has been developed by NIPS to drive the

implementation of a more gender-specific approach to custody. This work is

being taken forward in association with key partners to address all aspects of

regime and practice, and takes account of many of the specific criticisms that

have been raised by inspectorates and other agencies in respect of the careof women offenders in Northern Ireland. Further developments will be taken

forward throughout 2010/11 and beyond.

Action- ‘To drive forward the implementation of a gender-specific

approach to custody across all areas of the prison regime.’



60

CHAPTER 8

EQUALITY AND HUMAN RIGHTS ISSUES

Equality Implications

8.1 Section 75 of the Northern Ireland Act 1998 requires the Department of

Justice in carrying out its functions to have due regard to the need to promote

equality of opportunity:

• between persons of different religious belief, political opinion,

racial group;

• regardless of age, marital status or sexual orientation;

• between men and women generally;

• between persons with a disability and persons without; and

• between persons with dependants and persons without.

8.2 This strategy sets out a policy framework for the delivery of improved

services and interventions for women offenders. All respondents to theconsultation considered the proposals should have a positive impact on the

equality and human rights of women offenders and their children. The

strategy will impact most positively on women within all of the section 75

equality categories. Data and research shows that these women experience

greater levels of disadvantage and gender inequality.

8.3 Respondents to the consultation were asked to consider if any of the

proposals set out in the draft strategy will have an adverse equality impact on

groups within any of the nine section 75 equality categories. Respondents felt

that foreign national women and women from local ethnic minority groups,

who speak little or no English, may be disadvantaged and that women without

dependants might be discriminated against.



61

8.4 Some respondents also felt that the use of fines could adversely impact

on economically disadvantaged women and their families, and that women

living in rural areas might also be discriminated against as the INSPIRE

Women’s Project is located in Greater Belfast. Some respondents also felt

that male offenders could be discriminated against.

8.5 Taking into account these responses, all significant policies arising

from this strategy will be screened for their impact on equality of opportunity in

accordance with the guidance produced by the Equality Commission for

Northern Ireland. If it emerges that a policy could have any adverse

implications for equality of opportunity for any of the section 75 equality

categories, an Equality Impact Assessment will be carried out and ways of

either avoiding or mitigating the effect considered.

Human Rights Implications

8.6 This strategy will have a significant positive impact on the human rights

of all women offenders within Northern Ireland. It will increase the options

available for the diversion of women from prosecution and from custody. It

will also improve the conditions under which women are held if they are

committed to custody, through the development of gender-specific standards

for working with women prisoners that reference international human rights

principles; as well as through the development of gender-specific policies and

practices, and by advancing the proposal to build a new prison designed

specifically to address the needs of the offender. The strategy will also

provide for greater support for women offenders within the community, and

improve the potential for successful rehabilitation.

8.7 Respondents to the consultation were asked to detail if any areas of

the strategy could be a potential human rights issue. Concerns were raised

relating to: children’s rights to be with their mother; women being sent to

prison for non-criminal reasons because there is nowhere else for them to go;

and the treatment and management of foreign national women in the criminal

justice system.



62

8.8 Taking into account the above concerns, the organisations involved in

producing this strategy will be conducting human rights assessments on each

of the strands to ensure that every opportunity is taken to uphold and promote

the rights of all women offenders, and that obligations under human rights law,

including the United Nations Conventions as well as the Human Rights Act

1998, are fulfilled.



64

9.5 Two literature reviews have also been published on reducing offending

and on what works in terms of reducing women’s offending. Progress has

been made within both the women’s prison and the INSPIRE Women’s

Project in preparing women offenders for work, assessing childcare needs

and improving family contact. Research on women involved in prostitution is

nearing completion and will be published in November 2010.

9.6 In keeping with the multi-agency approach adopted throughout this

strategy, the DoJ will continue to work with its partners, particularly PBNI and

NIPS, to further develop and complete the outstanding actions. Lead

agencies responsible for taking forward each action in this strategy, with

target dates for completion, are set out at Annex 3. A Strategic Steering

Group will monitor progress against the action plan and report biannually to

the Criminal Justice Board.

9.7 All actions set out in this strategy should be completed by 2013. It

should directly contribute to the complex needs of women offenders being

addressed more effectively; and support an improved approach to managing

women offenders in Northern Ireland, both in the community and in custody.



66

Restorative Interventions

Action- ‘To establish and evaluate pilot restorative intervention schemes in

two areas.’

Gender-specific research

Action- ‘To publish an independent literature review of the international

research evidence on reducing offending.’

Action- ‘To undertake further research to explore national and international

evidence into what works in terms of women’s offending.’

Strategic Strand 3 - INSPIRE Women’s Project- Gender

Specific Community Supervision and Interventions

INSPIRE Women’s Project

Action- ‘To establish new premises for the INSPIRE Women’s Project pilot in

Belfast in 2009.’

Action- ‘To adopt a multi-agency partnership approach to routing women to

appropriate services.’

Action- ‘To begin to build relationships with other external organisations that

may provide services/advice on a part-time basis to those accessing the

INSPIRE Women’s Project.’

Action- ‘To work to provide greater continuity of the services offered to

women offenders in the community.’



67

Strategic Strand 4 – Developing a Gender-specific Approach

to the Management of Women in Custody

Offender Management- the impact of the Criminal Justice (Northern

Ireland) Order 2008

Action- ‘In response to the Criminal Justice (NI) Order 2008, to develop and

embed offender management processes that provide a multi-disciplinary

approach to addressing the needs of women, with improved sentence

planning and case management that ensures appropriate access to protective

factors, such as contact with family, learning and skills, employment and

offending behaviour programmes.’

Gender-specific guidance and training

Action- ‘To provide gender-specific guidance and training for staff working

with women prisoners.’



68

ANNEX 2- Disposals in all Courts by Gender and Offence

Classification 2006 (figures for women in brackets)

Source: Court Prosecutions and Sentencing 2006. NISRA Research and Statistical Bulletin

11/2008

OFFENCETYPE

Immediatecustody Suspendedcustody Supervisionin thecommunity

Fine Conditionaldischarge YouthConferenceOrder (1)

Other TOTAL

Violenceagainst theperson 409 (24) 400 (44) 299 (63) 728

(99) 84 (52) 34 (8) 46

(6) 2000(296)

Sexualoffences

88 (1) 24 (0) 28 (1) 14 (0) 5 (0) 0 (0) 0(0) 159 (2)

Burglary 233 (4) 117 (3) 108 (3) 23 (0) 12 (2) 23 (1) 3 (0) 519(13)

Robbery 123 (3) 3 (0) 14 (0) 0 (0) 1 (0) 3 (1) 1 (0) 145 (4)

Theft 234 (24) 231 (74) 265 (87) 426(98)

122 (81) 66 (6) 11(3)

1355(373)

Fraud andforgery

40 (3) 74 (20) 37 (17) 92 (10) 19 (17) 1 (0) 3 (0) 266(67)

Criminaldamage

237 (13) 188 (13) 229 (43) 263(24)

149 (30) 74 (4) 26(2)

1166(129)

Offencesagainst thestate

68 (4) 67 (2) 63 (3) 91 (1) 15 (3) 22 (0) 9 (0) 335(13)

Drugoffences

93 (6) 75 (4) 74 (9) 410(15)

34 (2) 7 (0) 5 (0) 698(36)

TOTALINDICATBLEOFFENCES(2)

1539 (82) 1194 (162) 1120 (227) 2057(249)

448 (188) 230 (20) 107(12)

6695(940)

SUMMARYOFFENCES(3)

192 (21) 371 (54) 279 (62) 1420(169)

264 (107) 45 (5) 533(123)

3104(541)

MOTORINGOFFENCES

(4)

364 (6) 529 (26) 406 (31) 11637(1830)

96 (23) 8 (1) 96(30)

13136(1947)

ALLOFFENCES

2095(109)

2094(242)

1805(320)

15114(2248)

808 (318) 283 (26) 736(165)

22935(3428)



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ANNEX 3- Action Plan

STRATEGIC STRAND 1 PROVIDING ALTERNATIVES TO PROSECUTION AND C

Key Initiative Action Target d

New Legislation ‘To have new legislation enacted which expands the range

of alternatives to prosecution and also reduces committal

to custody for fine default and to implement inline with

available resources.’ Page 20

May 20

‘To provide improved statutory defences for vulnerable and

abused women involved in domestic homicide cases.’

Page 21

Decembe

Alternatives to

Custody

‘To review the pathways to custody for women offenders to

identify areas where enhancements to existing community

disposals, or the development of additional interventions,

could support greater judicial use of non-custodial (as

opposed to custodial) sentences in appropriate cases.’

Page 21

Decembe



70

Electronic Monitoring ‘To continue to promote the use of electronic tagging for

monitoring compliance with bail curfews as an alternative

to remanding women in custody.’ Page 22

April 20

Fine Default ‘To improve the information provided to courts on women

offenders’ financial circumstances.’ Page 22

March 2

Mental Health ‘To continue to work with other Government departments

to improve the processes for diverting women offenders

with severe mental health problems away from the criminal

justice system.’ Page 23

March 2



71

STRATEGIC STRAND 2 REDUCING OFFENDING


A Partnershipapproach-

establishing a

Ministerial Group on

Reducing Offending

‘To develop a cross-departmental approach to ReducingOffending, to promote and facilitate the development of a

coherent Northern Ireland response addressing all aspects

of offending behaviour.’ Page 26

Autumn 2

Addressing

Offending Behaviour

– The Pathways

Pathway 1-

Accommodation

‘To review accommodation needs of women offenders and

vulnerable women, and existing arrangements, with a view

to working in partnership with other accommodation

providers, taking cognisance of the results of the

evaluation of the INSPIRE Women’s Project.’ Page 29

End of 2



72

Pathway 2-

Education, Training

and Employment

‘To further develop work within the Prison Service to

address the specific educational needs of women

offenders, including where needs have been identified in

relation to learning disability and other special needs.’

Page 30

End of 2

‘To further examine how the employment needs of women

offenders can be addressed as a discrete group.’

Page 31

Ongoing thr

2010/20

‘To further develop and progress the work of the Learning

and Skills Forum which will focus on making better use of

existing education and skills training to provide a more

joined-up service for existing offenders, and those at risk

of offending.’ Page 32

End of 2

Pathway 3- Health ‘To establish joint working groups with relevant parties to

ensure development of cohesive integrated services for

women with mental health difficulties in prison and in the

community who exhibit offending behaviour.’ Page 33

End of 2



74

Supporting women

who have been

involved in

prostitution

trafficking in Northern Ireland and identify what supportive

interventions might be made available.’ Page 44

Gender-specific

research

‘To compile an updated statistical report on gender and the

Northern Ireland criminal justice system by mid 2011.’

Page 47

Mid 20

‘To review the current information collated on women

offenders against their specific needs and identify any

gaps in the data requirements.’ Page 47

October



75

STRATEGIC STRAND 3- INSPIRE WOMEN’S PROJECT- GENDER SPECIFIC CO

AND INTERVENTIONS

Key Initiative Action Target dINSPIRE Women’s

Project Pilot

‘To review current assessment tools to establish the need

for a gender-specific approach.’ Page 54

End of 2

‘To complete an evaluation of the INSPIRE Women’s

Project pilot by December 2010 and, subject to the

outcome and recommendations of the evaluation,

establish a permanent dedicated INSPIRE Women’s

Project in Belfast.’ Page 54

End of 2

‘Subject to the evaluation of the pilot being positive and

resources being available, roll out the programmes and

practices pioneered at the INSPIRE Women’s Project

across Northern Ireland.’ Page 55

Mid 20



76

STRATEGIC STRAND 4- DEVELOPING A GENDER-SPECIFIC APPROACH TO TH

WOMEN IN CUSTODY


Accommodation ‘To take forward the case for the provision of a new,

purpose-built women’s prison facility, as well as interim

measures to improve the facilities within the current

accommodation.’ Page 58

SOC for new

to be availa

work to im

current faci

start by autu

Gender-Specific

Standards

‘To publish the gender-specific standards for the women’s

prison that will underpin the implementation of a gender-

specific approach to all areas of custody.’ Page 58

Autumn 2

Sustaining progress ‘To drive forward the implementation of a gender-specific

approach to custody across all areas of the prison regime.’

Page 60

Ongoing thr

2010/20



77

ANNEX 4- References

Agreement at Hillsborough Castle, 5 February 2010http://dojnet/hillsborough_agreement_5_february_2010.pdf - 2010-03-24

Draft Strategy for the Management of Women Offenders in Northern Ireland:A Consultation. February 2009. www.nio.gov.uk

Summary of Response to Draft Strategy for the Management of WomenOffenders in Northern Ireland: A Consultation. November 2009.www.nio.gov.uk

The Corston Report – Women in the Criminal Justice System. March 2007.www.justice.gov.uk

HM Prison Service- Female Prisoners.

http://www.hmprisonservice.gov.uk/adviceandsupport/prison_life/femaleprisoners/

2008/09 HMCIP Annual Report. www.hmic.gov.uk

Women in Prison- A Thematic Report by HM Inspectorate of Prisons. July2010. www.justice.gov.uk

Court Prosecutions and Sentencing 2006. NISRA Research and StatisticalBulletin. 11/2008. www.nio.gov.uk

The Northern Ireland Prison Population in 2009. NISRA Research andStatistical Bulletin. 2/2010. www.dojni.gov.uk

Kings College London, World Prison Brief. 2010.http://www.kcl.ac.uk/depsta/law/research/icps/worldbrief/

Home Office Statistical Bulletin. Re-offending of adults: results from the 2004cohort, 06/07. rds.homeoffice.gov.uk/rds/pdfs07/hosb0607.pdf

St Giles Trust. Key statistics.http://www.stgilestrust.org.uk/CaseStudies/140226/key_statistics.html

Bringing prisoners back home. Shadd Maruna, 2010.http://www.parliamentarybrief.com/2010/07/bring-prisoners-back-home#all

NIPS/PBNI Resettlement Strategy. 2004www.niprisonservice.gov.uk

NIPS Learning and Skills Strategic Plan 2010-1013www.niprisonservice.gov.uk

The Northern Ireland Personality Disorder Strategy, DHSSPS. June 2010.www.dhsspsni.gov.uk



78

New Strategic Direction for Alcohol and Drugs 2006-2011 DHSSPS.www.dhsspsni.gov.uk

Tackling Sexual Violence and Abuse – A Regional Strategy. June 2008.www.nio.gov.uk

Tackling Violence at Home. October 2005. www.nio.gov.uk

Domestic Violence Crime and Victims Act 2004. www.opsi.gov.uk

Reducing Offending: A Critical Review of the International ResearchEvidence. February 2009. www.nio.gov.uk

Addressing Offending by Women: A Literature Review. January 2010.www.nio.gov.uk



79

ANNEX 5- Glossary of Abbreviations

APAC Assisting People and Communities

ASRO Addressing Substance Related Offending

CSAP Correctional Services Accreditation Panel

CJINI Criminal Justice Inspection Northern Ireland

CRJI Community Restorative Justice Ireland

DE Department of Education

DesKE Desistence Knowledge Exchange Project

DEL Department for Employment and Learning

DHSSPS Department of Health, Social Services and Public Safety

DoJ Department of Justice

EFDNI Employers for Disability Northern Ireland

ELBs Education and Library Boards

FASA Forum for Action on Substance Abuse/ Forum for Action on

Suicide Awareness

FE College Further Education College

HMCIP Her Majesty’s Chief Inspector of Prisons for England and Wales

HMIP Her Majesty’s Inspectorate of Prisons

HMPS Her Majesty’s Prison Service Health and Social Care Board

HSCB Health and Social Care Board

IDAP Integrated Domestic Abuse Programme

MARAC Multi-Agency Risk Assessment Conference

NI Northern Ireland

NIACRO Northern Ireland Association for the Care and Resettlement of

Offenders

NICAS Northern Ireland Community Addiction Service



80

NIHE Northern Ireland Housing Executive

NIO Northern Ireland Office

NIPS Northern Ireland Prison Service

NISRA Northern Ireland Statistics and Research Agency

NOMS National Offender Management Service

PBNI Probation Board for Northern Ireland

PHA Public Health Agency

PPANI Public Protection Arrangements NI

REACT Reconciliation, Education and Community Training

ROI Republic of Ireland

SARC Sexual Assault Referral Centre

SET South Eastern Health and Social Care Trust

SSA Social Security Agency

UK United Kingdom

WCSP Women’s Community Support Project

WSN Women’s Support Network

YJA Youth Justice Agency



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